Disaster Planning for Historic Resources
Introduction
Over the past four years, the Division of Historical Resources (DHR) at the Department of State and the Division of Emergency Management (DEM) at the Department of Community Affairs have partnered, through 1000 Friends of Florida, to improve disaster planning for historic resources. In 2001, a research and expert review effort was launched by 1000 Friends followed by a roundtable of historic preservation and emergency management experts from around the state and the Southeast. The focus was to identify deficiencies in the actual practice of integrating historic preservation and emergency management, and ways to improve the connection.
The results of this research and roundtable were incorporated into a manual, completed by 1000 Friends on behalf of DHR and DEM in 2003.
The manual, entitled Disaster Planning for Florida's Historic Resources, identifies a number of steps that can be taken to prepare for a disaster to minimize its impacts on historic resources. The underlying concept is to have accessible, accurate information about the location of historic resources and a framework for ensuring that information is available to emergency personnel trying to plan disaster mitigation, as well as those in the field dealing with response and recovery.
Currently, 1000 Friends, again through support from DHR and DEM, is working with four pilot communities (Nassau County, Apalachicola, Palm Beach County and Sarasota County) to bring these concepts down to the specific community level. This project builds upon the ideas outlined in a manual published last year, "Disaster Planning for Florida's Historic Resources", and is intended to test the concepts outlined in that document. This project is designed as a demonstration effort with multiple case studies, to show how differing communities can implement pre- and post disaster planning for historic and cultural resources.
Pilot Communities
The first step in this project was to identify and gain the support of four communities to participate as pilot communities. Working with DHR and DEM, it was deemed very important to get a good cross-section of communities in terms of geography, scope of historic resources, and size. It was also important to have diversity in who was taking the lead (emergency management and historic preservation entities) among the communities.
Nassau County
Nassau County is located in the northeast corner of Florida at the Georgia border, just 30 miles north of downtown Jacksonville. Located to serve important domestic and international markets, Nassau County comprises 652 square miles and is divided into three incorporated areas: Hilliard in the northwest region, Callahan in the south mid-west and Fernandina Beach in the east. The county is a blend of rural, wooded areas to the west and beautiful rivers, bays, beaches and the Atlantic Ocean to the east. Its current population is approximately 62,000 people. The largest community within Nassau County is the city of Fernandina Beach, with a population of approximately 11,000 people. Much of the County's population including residents of Fernandina lives on Amelia Island, a coastal barrier island along the Atlantic coast. Many of the historic resources are located in the same area, thus making them vulnerable to wind and water.
Nassau County's Department of Emergency Management, through its Emergency Management Director, is taking the lead in this pilot project, with a focus on coordinating with Fernandina Beach. In addition to participating in the Ybor City roundtable, Nassau County also participated as a member of the Technical Advisory Committee in the development of the manual "Disaster Planning for Florida's Historic Resources", and views this project as a natural extension of that work. The County is also updating to the Local Mitigation Strategy so the timing of this pilot project is good. It should also be noted that the Emergency Management Director also has a background in historic preservation, although she is currently not working in that field. This knowledge of both the historic preservation issues and the emergency management function provides an excellent opportunity to identify creative links between the two areas.
Nassau County is a good model for urbanizing counties, with one or more local communities containing significant historic resources. It also serves as an example of the county emergency management arm taking the lead in coordination with the communities. In addition to the emergency management staff, the local committee convened to work on this project included representatives from Nassau County and Fernandina Planning Departments, the Northeast Florida Regional Council, the St. Augustine Regional Preservation Office of the Florida Department of State, the Amelia Island Museum and Fort Clinch State Park.
Palm Beach County
Palm Beach County is located on the southeast coast of Florida and represents a highly urbanized area. It has 37 incorporated areas within its boundaries, and currently has a population of approximately 1.2 million people.
Similar to Nassau County, representatives from the Palm Beach County Emergency Management Office had participated in the Ybor City roundtable and had followed the subsequent activity regarding the manual development. Over the last two years, initial steps to integrate historic preservation and emergency management functions have been taken. The County has 66 national registered sites and historic districts identified within the county. A countywide inventory database of county and municipal historical resources with photographs and GIS maps now exists in the Emergency Management Office. Historic preservation is planned to be integrated into the emergency management process with additions to the Comprehensive Emergency Management Plan and Local Mitigation Strategy. These efforts mesh very well with the goals of the pilot project.
Palm Beach County is a model for urban jurisdictions that come into the process with a certain level of planning already completed. Additionally, it is another example of the emergency management arm taking the lead in coordination with other communities. The local committee was comprised of representatives from the Palm Beach Emergency Management Department, the Southeast Florida Regional Preservation Office of the Florida Department of State, the Town of Lake Park, the Town of Jupiter, and the City of West Palm Beach. Additionally the Palm Beach County Planning Department and the cities of Delray Beach, Lake Worth, Palm Beach and Boca Raton were invited to participate.
Apalachicola
Apalachicola is located at the mouth of the Apalachicola River in Franklin County. Established in 1831, the City currently has an estimated population of approximately 2,300 people. Franklin County has a population of approximately 10,000 people. There are over 200 historic homes and buildings in Apalachicola on the National Register. Much of the current economic development effort in the city relies on the historic district, the waterfront activities related to the seafood industry, and the area's bountiful natural resources. In the past, the City has relied on Franklin County's efforts related to emergency management and has not taken an active role. There has not been any attempt to link or incorporate historic preservation considerations into the emergency management functions.
Apalachicola will be a good model for the small, rural, significantly historic communities with limited resources. Additionally, this community is a model of a local city taking the lead to integrate historic preservation up into the countywide emergency management function. The local committee members include the City Administrator, Apalachicola Bay Chamber of Commerce, Apalachicola Area Historical Society, Franklin County Planning Director, Franklin County Emergency Management Director, and the Apalachee Regional Planning Council.
Sarasota County
Sarasota County, established in 1921, is located on the southwest coast of Florida. It encompasses an area of about 620 square miles and is located 60 miles south of Tampa. The county is bordered by Manatee County to the north, DeSoto County to the east, Charlotte County to the south, and the Gulf of Mexico to the west. In addition to the City of Sarasota, the other municipalities include the cities of Venice, North Port, and the Town of Longboat Key. The 2002 estimate puts the population of permanent residents at 339,684, or about 548 persons per square mile. Slightly less than one-third are 65 years or older. Principal industries include tourism, agriculture, and light industry.
Sarasota County, and its incorporated areas, has an active historic preservation community. Approximately 48 structures within the county are currently listed on the national register, and 160 resources are locally designated. Most of these resources are located in the western part of the county, with a high concentration west of U.S. 41.
Having participated in the earlier phases of this project, the historic preservation arm, in the form of the Sarasota County History Center Director, is taking the lead in this pilot community. Sarasota County is a model for small urban area with a strong preservation interest. The core members of the local committee included representatives from the Sarasota County History Center, City of Sarasota Planning Department, City of Venice Archives, Sarasota County Historical Commission, Sarasota Historical Society, the Community Historic Coalition, and the Sarasota County Emergency Management Office.
For more information contact Alex Magee at amagee@1000fof.org, or call at:
(850) 222-6277 (ext. 106)